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PUBLIC
POLICY
Presented by:
Joanna Lou Pacio Reponte
1. Presents in a practical, readable manner—the policy
framework within which our political system operates.
2. Describes the people and the organizations that
drive our multi-faceted democratic system.
3. Elaborates on different kinds of policy and the
diverse styles of elected officials and on how politics
intersects with these factors.
4. Discuss the three arenas in which policy is made as
diverse sets of actors interact with the political system.
OBJECTIVES:
5. Discuss how communities and individual citizens
can most effectively organize to influence and have
an impact on the policy and political system.
6. Discuss the factors such as the importance of
numbers, legitimacy, and diverse forms of power.
7. Concludes with the key ingredients and rules of
successful group action, including the twenty-first
century phenomenon—the Internet.
OBJECTIVES cont:
• Three Kinds of Policy
• Three Policy Arenas
• Three Kinds of Policymakers
• Five Ways Elected Bodies Make Policy
• The Policy Process
• A Simple Guide For Social Change
TOPIC OUTLINE:
THREE KINDS OF POLICY
1. Good Policy/Good Politics
2. Good Policy/Bad Politics
3. Bad Policy/Good Politics
I have found over the years that legislative bodies spend
a disproportionate amount of their time on bad policy
and good politics. That is why it is so important for
people to understand and to participate in the policy
process. Most policymakers want to do what’s right and
productive, but they also have to get reelected.
Therefore the policy suffers and politics all too often
prevail.
THREE POLICY ARENAS
1. Elected Bodies
On the national level, there is Congress; the state legislature on
the state level; and, on the local level, the county commission,
city council, township trustees, and school boards. In each
instance we elect someone from our neighborhood to represent
us in the elected body. The idea of representing a specific
geographic area is key, as policymakers are expected to be
accessible to and reflective of this constituency. Elective bodies
are generally very open, participatory, and deliberative.
2. The Courts
The courts offer a completely different kind of arena for
policymaking. It is not as open, as participatory, or as
consensual. Courts are an adversarial arena. You must be or
have an attorney to participate.
3. The Streets
The street strategy allows for a public debate in a less formal
atmosphere. It can be as simple as writing a letter to the
editor, circulating a petition, or protesting at City Hall or the
state Capitol; more active involvement might include
organizing or taking part in public marches, mass
demonstrations, or even civil disobedience. The participants
in the street strategy are trying to educate the public and
policymakers about their particular issue.
Over the years the civil rights movement, women’s
movement, antiwar movement, environmental
movement, and the debate over abortion policy have
played out their dramas in the streets. When this
avenue is not available, violence is generally the
alternative. Therefore, it is important to understand the
critical role the streets play in a democratic society
and the formulation of public policy.
THREE KINDS OF POLICYMAKERS
1. Delegate
Delegates believe themselves to be representative of their
neighborhood or district; they see their role as reflecting
and representing the views and values of their
constituencies. They are very sensitive to the polls and
are always trying to understand the prevailing public
opinion in their specific districts. These public officials take
the concept of “representative” literally, working hard to
reflect the interests and values of their neighbors.
Delegates are acutely aware of public opinion and polls
and, consequently, tend to be more followers than
leaders. Delegates make up the majority of elected
officials serving in most elected bodies.
2. Trustee
The trustee is someone who advocates a specific ideology,
principle, or value that they believe best serves the public
and is less interested in the prevailing public opinion.
Trustees place a high value on principle and their
particular world view and are often seen as
uncompromising and rigid. The key idea here is that
trustees are concerned about public opinion and may be
persuaded by information or research that reflects their
particular world views. Trustees see themselves as leaders
and enjoy policy as it relates to their world views.
3. Politico
This person is more interested in the campaign, trappings, and
benefits of office than the particulars of public policy. Politicos are
always looking for the next office, always campaigning, and focus
little time on public policy, except as it impacts their ability to seek
and achieve another office.
One easy way to remember these introductory
comments is to think of three Ps—policy, politics,
and personality—as all three interact in this dynamic
process.
FIVE WAYS ELECTED BODIES MAKE POLICY
Public policy is traditionally made in elected bodies.
Most people believe that the lawmaking process is the
beginning and end of policymaking, but it is important
to understand that there are five separate and distinct
ways that public bodies make policy.
1. Lawmaking
The first and most obvious is Lawmaking itself. On the
national level, Congress enacts laws. On the state level,
the legislature enacts laws. On the local level, elected
bodies pass resolutions and ordinances that have the
force of law but are secondary to the state
2. Budget Process
A law without a Budget is simply rhetoric. The budget-
making process is as critical as the lawmaking
process. The budget process generally is an annual
process that runs independently
of the lawmaking process.
3. Rule Making
This strategy has the advantage of offering clarity, but
the disadvantage is that the bill is considered a page
and a line at a time and must pass both chambers
exactly the same. The longer and more complex the
bill, the higher the likelihood of adding years to the
process. An alternative legislative strategy is to pass a
simple, two- or three-page bill that creates a policy
framework, but leaves the detail to be worked out later.
More and more legislatures are choosing the second
option because it is simpler and faster and leaves
some of the tougher decisions to the state
bureaucracy.
4. Oversight
These time-limited committees are created to look at a
specific problem or issue and make recommendations
to the full body. Oversight committees have the
advantage of cross-fertilization with members from
multiple standing committees and the appropriations
committees of the legislative body. Once created, their
task is to define a problem, look at alternative
solutions, hold public hearings, create public
awareness, and make recommendations to the full
body; then to advocate and follow through, getting
those recommendations adopted as policy.
5. Sunset Option
Legislatures often enact laws that expire after a given
number of years. The idea is to give the policy a
chance, then re-enact it only if proven successful.
Another sunset strategy is to create a new program
and an automatic review, but not termination, after five
years. The idea behind the review is to create some
kind of evaluation and accountability within the policy-
making process. While accountability is important, it
should be noted that many constitutional offices and
their departments are exempt from sunset (e.g.,
secretary of state, attorney general);
To recap, then, we have a Lawmaking process that is
open, participatory, and consensual, taking three to
five years; a less participatory, annual Budget process;
a five- to seven-year Rule- Making process; an
Oversight process that allows for an evaluation and
judgment on the effectiveness of the law, budget, and
rules; and the potential to Sunset a program or policy.
Conceptually, these legislative processes fit together.
Ideally, a lawmaker helps formulate the law,
participates in the budget, helps provide oversight,
and is engaged in any serious sunset review of the
policy or program.
The Policy Process
Democracy is not a spectator sport. So, let’s shift gears and
look at how elective bodies go about making policy and how
an individual can impact that process. Think of elected bodies
as large stadiums. In the arena are the policymakers who are
armed with a tool called the vote. Each day the policymaker
goes into the arena and struggles, debates, persuades, and
eventually votes on the public policy. The process is very
open and participatory. Each day the legislature and the
Congress publicize the issues that will be considered on that
day. One can observe this process on cable television and see
the reporting of the results through the traditional news
media. What is not so obvious is the power and influence of
other people who participate in the policymaking while sitting
in the stands.
THREE ACTORS
1. Special Interest Groups
These groups generally represent a specific interest,
business, or point of view. They are represented by
sophisticated lobbyists who are armed with weapons as
well. The lobbyist provides expert information that can
be used to persuade policymakers to agree with their
point of view. That information is also used to educate
and inform the public of their point of view. Lobbyists
also have enormous power because they have money to
buy policymakers lunch, to entertain, to persuade, and
to influence campaigns.
2. State Government
Departments
Each department has a “legislative liaison” whose job
it is to follow the process and educate the
policymakers and the public. The departmental
legislative liaison’s powerful tool is expert information,
which is supposed to be neutral, not self-serving, and
in the best interest of the entire community.
3. Consumers, Citizens, and
Taxpayers
Some groups are organized and sophisticated, like
Common Cause, the National Rifle Association, and
the senior citizen network, AARP. All kinds of citizens
groups organize to follow, observe, and participate in
the policymaking process. The power of this warrior
group is seen in their ability to generate large numbers
of people who are informed, get actively involved in
the policy process, and vote regularly.
Policy Into Law
When all three groups agree—the special interest
groups, the department liaison, and the consumer
groups—their power coalesces around the policy, and
it becomes law. It is good
politics and generally good policy if all three of these
groups are in agreement. Unfortunately, these groups
don’t always agree nor get along with each other; they
are often at odds.
An effective policymaker will work to get at least two of
the three groups to support the evolving consensus or
compromise policy. The politics are to at least get the
special interests and
the consumers on the same page. The departments
and the expert “neutral” information they represent do
not carry the same weight as the well-financed
lobbyists representing the special interest and the
powerful influence of organized consumers who vote.
Power is the bottom line!
The most important point that can be made is that the
democratic process is a participatory process; it works
best when all of the interests are involved and engaged
and part of the process. If consumers and taxpayers get
discouraged—give up and walk away from the
policymaking process—power goes by default to the
special interests. Thomas Jefferson once said that “The
best cure for an ailing democracy is more democracy.”
Democracy is best served by getting people involved,
organized, and focused.
How then do citizens and community leaders at the
grassroots level organize most effectively to influence
the multi-faceted policy and political system
described?
Two Popular Myths (Dispelling
Myths)
You need large numbers to be effective: False.
Most groups revolve around a small core of individuals
who have the trust of the larger group. The core group
must learn how to build coalitions and be able to draw
on larger numbers at the appropriate time. Don’t be
discouraged if only a small group shows up to key
meetings. The important thing is not to exclude anyone
from the core group and to learn when and how to
involve the less committed allies. For those people
who miss meetings, keep them involved and up-to-date
with phone calls and mailings. The smallness of a
group becomes a liability only if it remains small
and/or is unable to develop coalitions.
You must have special training to be able to organize a
group: False.
Some of the most savvy and effective organizers are
grassroots people who know the wishes of the
community and can articulate them. The key to
leadership is gaining and keeping the
trust of the group. This is accomplished by working
with the group—not for them.
The Bottom Line: Your
Credibility
To organize, you must identify and bring together a
core group of individuals. The core group has basically
two initial tasks:
1. To clearly develop a focus or set of goals
2. To decide how to expand the group to represent
as many viewpoints as possible so that the group’s
legitimacy and credibility cannot be challenged.
The makeup of your group will, of course, help shape
your goals; a group’s membership and its goals
usually shift somewhat over time.
Assumptions
Before the group can develop a focus or a set of goals,
it is important to state the assumptions the group
might share. First, when dealing with institutions (e.g.,
government agencies), it is helpful to keep in mind the
Peter Principle (Lawrence J. Peter. The Peter Principle.
W. Morrow Publishers, 1969):
Large, organizations develop bureaucratic hierarchies
or “pyramids of power.” People are often promoted to
positions of power beyond their level of competence.
In other words, just because they have impressive-
sounding titles, don’t assume they know what they are
talking about! Second, our society is organized into
institutions that were initially set up to achieve some
special social goals.
Legitimacy and Those Who
Have It Are the Keys to
Change
Once you have effectively exposed the institution for
its inability to achieve its own stated goals, the
institution has basically two alternatives:
1. To make changes to achieve the goal
2. To become defensive and attack your group.
Most institutions will initially resist change, especially
if it is initiated from within. If they do begin to change,
be on guard. Your group could be co-opted or
sandbagged when a policymaker gives superficial lip
service to your suggestion but has no intention of
implementing policy or change. Your group, thinking
they have won, will become diffused and apathetic—
losing interest even though the critical work of
implementing the change will require continued
oversight and pressure. Quick success is almost
always fatal to a community group!
If the institution reacts defensively and begins to
attack your group, it means you have hit a sensitive
point and are on the right track. You can be sure you
have become a threat when the institution begins to
challenge your group’s credibility. You must expect
this kind of attack and not become defensive. You can
judge the merit of your recommended change by
the intensity of the institutional attack. The more
defensive and hostile their response to you and your
group, the more on target you are. You should move
ahead aggressively.
Two Kinds of Commitment
It is always important to remember that there are two
levels of involvement and commitment to any
movement for change. On one level is the emotional
commitment—the feeling that
something is wrong and the desire to do something to
change it. There is also the intellectual level
personified by a well-read, knowledgeable, thoughtful
individual. A group needs both
levels of commitment to be effective.
1. Those with the emotional commitment are the
traditional activists.
They are highly motivated and are anxious “to get
involved” to try to change conditions. They normally
have little historical perspective and are unable to
articulate the group goals. They are often, but not
always, hot heads and can be an
embarrassment to your group. They are important to
your group, but must learn to subordinate their own
interests to those of the larger group.
2. The intellectual level requires individuals who
understand the historical significance of the change
being advocated.
These people have a sophisticated understanding of
the interrelationships, the nuances and the subtleties
of the situation. Unfortunately, many intellectuals are
unable to translate the thought into action and,
therefore, are not helpful to a group. The ideal group
leader has both an emotional and intellectual
commitment (e.g., Martin Luther King, Jr., and Caesar
Chavez) and can harness the energy of the emotions
and the thoughtfulness of the intellect to give direction
to a group
Unfortunately, few groups have such unique
individuals as leaders. It is, therefore, the leader’s task
to be sure that both the emotional and intellectual
commitment is present in the group. An over-reliance
on either will lead to a poorly thought out strategy and
subsequent clumsy attempts at change or what may be
called “paralysis by analysis”—all thought and no
action. Either result can be disastrous and counter
productive because it makes future attempts to
organize much more difficult.
Forms of Power
Now that you have identified a core group, goals and
others who share your interest, it is time to consider
what kinds of power you and your group can bring to
the coming struggle.
It is important to recognize that when you advocate
change, you take on special interests that will be
threatened by a change. Usually the special interest
groups have a great deal
of influence, often by default, because they possess an
abundance of a few types of power: money, knowledge
and personal relationships with the policymakers.
Special interest groups are not necessarily sinister in
their use of power. They use money to contribute to
policymaker campaigns, to hire lobbyists, to wine-and-
dine and to develop detailed materials to document
their particular need(s). Special interests can and do
play an important role in policymaking. Community
groups can learn a great deal from observing how they
utilize power to affect public policy. Community
groups do not have the money to compete with special
interests; therefore, they must seek to use other kinds
of power. A core group of organizers must learn to
mobilize other types of power.
1. Numbers Are Power
Policymakers (e.g., city council members, legislators)
are very concerned about large numbers of voters,
especially if they are upset. It is important that you
identify other groups that agree with your goals and
who are willing to show up to a meeting on
behalf of your interests. Numbers give you additional
legitimacy and credibility. Policymakers continually
assess the impact of what they are doing or plan to do.
They are extremely sensitive to organized groups. The
larger and more diverse the
group, the more likely that it will be taken seriously.
Seek ways to expand your group. The group, however,
must have well-established goals and strategies, or it
will become divided and ineffective.
2. Coalitions Are Power
Although your group might be small, you probably can
find others who share your concerns. Expanding the
numbers of a group involves building coalitions;
coalitions involve
bringing together diverse groups to work toward a
common goal. It is important to identify the goals
because there will be area where the various coalition
members disagree. The group must learn to agree on
the goals and agree to disagree on the areas of
difference.
3. Unity Is Power
A large, diverse group presenting a unified position
before a city council or a legislative committee has
power. Be careful. Choose wisely the person who
speaks for your coalition in public meetings. If the
spokesperson gets excited, exaggerates a point or
gives misinformation, a smart policymaker will seize
upon the occasion to destroy the credibility of all of
the information and may discredit the entire group as
well. Should the group seek to defend the
misstatement, it risks its own credibility. However, if
the group disassociates itself from the spokesperson
or information presented the group may become
divided and ineffective. Do not let this happen! Unity is
essential to maintain your legitimacy and credibility.
Disunity equals powerlessness.
4. Positions Are Power
It is important to bring to your group people who hold
important, credible positions in your community.
Bankers, educators, business people, community
leaders and clergy give your group legitimacy. Try to
involve them in your group.
5. Knowledge Is Power
Two kinds of knowledge are essential to affect public
policy: First, you must be knowledgeable about the
process of decision-making. Each public body has
rules and policies that describe how decisions are
made. Get the rules. Learn them. Remember there are
also informal rules. Get to know those, too. Then
monitor the meetings and impact the decisions at the
appropriate time. Second, you must be knowledgeable
about the issue you represent. Study and understand
the issue. Do not exaggerate or misrepresent the facts.
Develop good information. Policymakers will learn to
trust you and eventually will depend on you for facts.
6. Relationships Are Power
It is always helpful to know the legislator, city councilperson,
or county commissioner personally. Don’t be afraid to help on
a campaign or volunteer to work in a policymaker’s office.
Development of a personal relationship with the policymaker
will give you access and credibility. You should get to know
key policymakers to such a degree that you feel comfortable
calling them or visiting their offices. You will know that you
have power and influence with policymakers when they return
your phone calls. It is also helpful to know that each
policymaker has a hidden advisor—some trusted friend or
associate who meets regularly with the policymaker and has
an inordinate amount of influence on the policymaker’s
thinking and judgment. You can save yourself and your group
a lot of trouble if you get to know that hidden advisor, working
to gain this person’s trust.
7. Voting Is Power
Elected policymakers listen to voters. Be sure you are
registered and vote. Be sure that all of your coalition
members are voters and willing to vote as a block.
8. Use of the Media Is Power
Policymakers dislike bad publicity. You must learn
how to develop literature, talk to the press, go on
radio, and speak before cameras so you can get your
message across.
Policymakers will go out of their way to avoid bad
press if they can, so don’t be afraid to use the media.
9. Money Is Power
Although most citizens’ groups are at a monetary
disadvantage, they must have some funds to develop
materials, pay for mailings and keep other members of the
coalition informed. You will not be able to compete
financially with special interests, but if you have the other
elements of power, you can overcome the power of money.
No group, however, can function without some funds!
10. The Internet Is New Power
In the 20 years since I originally developed this
organizing “recipe,” a new ingredient has appeared
that is showing remarkable ability to inform and
influence policy and policymakers—The World Wide
Web. It is a tool that puts information and organizing
ability in the hands of real people who would be wise
to make sure the other ingredients are on the table
when cooking up their plans for social change. The
Internet is changing our concept of “community” and
extending our reach in ways that were unimaginable,
or certainly much more difficult to achieve, before its
advent. New strategies and lessons learned will come
from a new generation of organizers for whom this tool
has become a vital channel for change.
These ten elements of power, if used in combination,
will more than offset the special interest groups. No
smart public officials will disregard the wishes of a
large, unified coalition of knowledgeable voters who
have expressed a specific interest to them. The power
of money usually will dwindle as the organized
community group becomes more knowledgeable,
assertive and effective.
The Four Key Ingredients
Once your group is formed—a process that might take weeks
or months—four elements must be present before the group
can take any action. If one of the four is missing, the group
will exhibit the classic defense mechanisms—rationalizing,
back stabbing, scapegoating, forming more committee(s)—to
avoid taking action. The four essential ingredients are:
Hope: The group must believe that all the effort, time, and toil
will result in some changes.
Courage: The group must be willing to “risk” the
confrontation.
Goals: The group must clearly understand what it is that is
being changed.
Strategy: The group must clearly understand how the goal is
to be achieved.
Making It Happen
Once the group has become a group, has identified its
goals, and has decided to take an action, follow these
six simple rules to achieve maximum results:
1. Be There
“Being there” means finding out when and where the
real decisions are made and then getting the
appropriate people to that meeting. This might mean
having one person monitor a meeting for several
weeks just to know what is going on and then, at the
appropriate time, bringing in the larger group. “Being
there” means making a commitment to understanding
the system. Nothing is more frustrating than being at
the right place at the wrong time or at the wrong place
and missing the real decision.
2. Be Informed
It is important that the group be legitimate. This means
developing accurate information and presenting it in the
most rational way. Even the slightest exaggeration or
smallest piece of misinformation can discredit the group
and destroy its legitimacy. When developing specific
information for policymakers, assume that they are
intelligent but uniformed. Remember, they have more than
one issue to be concerned about. It is a mistake to assume
they know or care about yours. Be prepared to be
challenged on your data. Make sure it is accurate. Develop a
network for information-gathering that is quick and
responsive. Once you have established your credibility, you
will be called upon again and again.
3. Be Able to Count
This is a democratic society—the majority rules. The group
must know the number needed to pass a resolution, law
ordinance or policy. They must know policymakers’ stands on
issues that concern them and develop arguments that will
appeal to the voters. (This might entail compromise, which
every group should consider as part of their strategy.)
Remember, policymakers can also count. It is therefore
important to demonstrate that your group is legitimate—well-
informed and broadly based. At some point in the process,
you may need to produce large numbers of allies to
demonstrate your broad base of support, and to do this you
must build coalitions.
4. Don’t Be Intimidated
Intentionally or not, the system is intimidating. To personally
visit a key policymaker, you may have to go through two
assistants and three doors—and then confront a huge,
overpowering, walnut desk that separates you from the
policymaker. During official meetings, the policymakers sit
together, usually on a raised platform, surrounding
themselves with “experts” from the bureaucracy. If you wish
to address the group, you must “come down front” and stand
before them—alone—speaking into a microphone that distorts
your voice, increasing your discomfort. Don’t be intimidated
by all of this. If you are informed, if you have the votes, and if
your support group shows up, you will find that your fears
soon disappear.
5. Don’t Take “No” For An Answer
You should never expect a new idea, no matter how logical or
reasonable, to be accepted on its face value the first time it is
presented. Instead, you should anticipate all of the hostile
questions and expect to be turned down initially. In fact, if
your idea is accepted up front, without much resistance, there
probably will be no real change. It may mean that the
policymakers are going to sandbag your proposal—by giving
lip service to your idea with no intention of implementing it. In
general, the more the resistance, the better the idea. Be
prepared to dig in and follow through because it takes a major
commitment of time and energy to fully implement a new
policy.
6. Follow Through
All of the group’s efforts can be lost if you fail to follow
through. In fact, you can be co-opted by an easy
victory since the group will tend to dissolve after
reaching its goal. Within weeks or months, things will
be back to normal and you’ll find it
difficult, if not impossible, to get the group back
together.
Conclusion
Community change means a commitment to the long
haul—to the process. Don’t be confused with winning
and losing. Many times, winning in the short term
really means losing in the long run. Conversely, losing
is often best for the group. After a period of time, a
group leader will learn that it is the process of
continually participating in change and the integrity of
the people who participate in that process that is most
important, not winning or losing a few skirmishes.
Finally, never lose your humanity in order to save
humanity. One of the most important assets of a
change agent is a sense of humor. Learn to laugh at
yourself and with others. Strive to make this world a
better place to live, work, and love. In doing so,
remember that no single issue—no matter how
important it may seem today—is as important as your
commitment to each other and your commitment to the
integrity of the process.
THANK YOU
     

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Public policy

  • 2. 1. Presents in a practical, readable manner—the policy framework within which our political system operates. 2. Describes the people and the organizations that drive our multi-faceted democratic system. 3. Elaborates on different kinds of policy and the diverse styles of elected officials and on how politics intersects with these factors. 4. Discuss the three arenas in which policy is made as diverse sets of actors interact with the political system. OBJECTIVES:
  • 3. 5. Discuss how communities and individual citizens can most effectively organize to influence and have an impact on the policy and political system. 6. Discuss the factors such as the importance of numbers, legitimacy, and diverse forms of power. 7. Concludes with the key ingredients and rules of successful group action, including the twenty-first century phenomenon—the Internet. OBJECTIVES cont:
  • 4. • Three Kinds of Policy • Three Policy Arenas • Three Kinds of Policymakers • Five Ways Elected Bodies Make Policy • The Policy Process • A Simple Guide For Social Change TOPIC OUTLINE:
  • 5. THREE KINDS OF POLICY 1. Good Policy/Good Politics 2. Good Policy/Bad Politics 3. Bad Policy/Good Politics
  • 6. I have found over the years that legislative bodies spend a disproportionate amount of their time on bad policy and good politics. That is why it is so important for people to understand and to participate in the policy process. Most policymakers want to do what’s right and productive, but they also have to get reelected. Therefore the policy suffers and politics all too often prevail.
  • 7. THREE POLICY ARENAS 1. Elected Bodies On the national level, there is Congress; the state legislature on the state level; and, on the local level, the county commission, city council, township trustees, and school boards. In each instance we elect someone from our neighborhood to represent us in the elected body. The idea of representing a specific geographic area is key, as policymakers are expected to be accessible to and reflective of this constituency. Elective bodies are generally very open, participatory, and deliberative.
  • 8. 2. The Courts The courts offer a completely different kind of arena for policymaking. It is not as open, as participatory, or as consensual. Courts are an adversarial arena. You must be or have an attorney to participate.
  • 9. 3. The Streets The street strategy allows for a public debate in a less formal atmosphere. It can be as simple as writing a letter to the editor, circulating a petition, or protesting at City Hall or the state Capitol; more active involvement might include organizing or taking part in public marches, mass demonstrations, or even civil disobedience. The participants in the street strategy are trying to educate the public and policymakers about their particular issue.
  • 10. Over the years the civil rights movement, women’s movement, antiwar movement, environmental movement, and the debate over abortion policy have played out their dramas in the streets. When this avenue is not available, violence is generally the alternative. Therefore, it is important to understand the critical role the streets play in a democratic society and the formulation of public policy.
  • 11. THREE KINDS OF POLICYMAKERS 1. Delegate Delegates believe themselves to be representative of their neighborhood or district; they see their role as reflecting and representing the views and values of their constituencies. They are very sensitive to the polls and are always trying to understand the prevailing public opinion in their specific districts. These public officials take the concept of “representative” literally, working hard to reflect the interests and values of their neighbors. Delegates are acutely aware of public opinion and polls and, consequently, tend to be more followers than leaders. Delegates make up the majority of elected officials serving in most elected bodies.
  • 12. 2. Trustee The trustee is someone who advocates a specific ideology, principle, or value that they believe best serves the public and is less interested in the prevailing public opinion. Trustees place a high value on principle and their particular world view and are often seen as uncompromising and rigid. The key idea here is that trustees are concerned about public opinion and may be persuaded by information or research that reflects their particular world views. Trustees see themselves as leaders and enjoy policy as it relates to their world views.
  • 13. 3. Politico This person is more interested in the campaign, trappings, and benefits of office than the particulars of public policy. Politicos are always looking for the next office, always campaigning, and focus little time on public policy, except as it impacts their ability to seek and achieve another office.
  • 14. One easy way to remember these introductory comments is to think of three Ps—policy, politics, and personality—as all three interact in this dynamic process.
  • 15. FIVE WAYS ELECTED BODIES MAKE POLICY Public policy is traditionally made in elected bodies. Most people believe that the lawmaking process is the beginning and end of policymaking, but it is important to understand that there are five separate and distinct ways that public bodies make policy. 1. Lawmaking The first and most obvious is Lawmaking itself. On the national level, Congress enacts laws. On the state level, the legislature enacts laws. On the local level, elected bodies pass resolutions and ordinances that have the force of law but are secondary to the state
  • 16. 2. Budget Process A law without a Budget is simply rhetoric. The budget- making process is as critical as the lawmaking process. The budget process generally is an annual process that runs independently of the lawmaking process.
  • 17. 3. Rule Making This strategy has the advantage of offering clarity, but the disadvantage is that the bill is considered a page and a line at a time and must pass both chambers exactly the same. The longer and more complex the bill, the higher the likelihood of adding years to the process. An alternative legislative strategy is to pass a simple, two- or three-page bill that creates a policy framework, but leaves the detail to be worked out later. More and more legislatures are choosing the second option because it is simpler and faster and leaves some of the tougher decisions to the state bureaucracy.
  • 18. 4. Oversight These time-limited committees are created to look at a specific problem or issue and make recommendations to the full body. Oversight committees have the advantage of cross-fertilization with members from multiple standing committees and the appropriations committees of the legislative body. Once created, their task is to define a problem, look at alternative solutions, hold public hearings, create public awareness, and make recommendations to the full body; then to advocate and follow through, getting those recommendations adopted as policy.
  • 19. 5. Sunset Option Legislatures often enact laws that expire after a given number of years. The idea is to give the policy a chance, then re-enact it only if proven successful. Another sunset strategy is to create a new program and an automatic review, but not termination, after five years. The idea behind the review is to create some kind of evaluation and accountability within the policy- making process. While accountability is important, it should be noted that many constitutional offices and their departments are exempt from sunset (e.g., secretary of state, attorney general);
  • 20. To recap, then, we have a Lawmaking process that is open, participatory, and consensual, taking three to five years; a less participatory, annual Budget process; a five- to seven-year Rule- Making process; an Oversight process that allows for an evaluation and judgment on the effectiveness of the law, budget, and rules; and the potential to Sunset a program or policy. Conceptually, these legislative processes fit together. Ideally, a lawmaker helps formulate the law, participates in the budget, helps provide oversight, and is engaged in any serious sunset review of the policy or program.
  • 21. The Policy Process Democracy is not a spectator sport. So, let’s shift gears and look at how elective bodies go about making policy and how an individual can impact that process. Think of elected bodies as large stadiums. In the arena are the policymakers who are armed with a tool called the vote. Each day the policymaker goes into the arena and struggles, debates, persuades, and eventually votes on the public policy. The process is very open and participatory. Each day the legislature and the Congress publicize the issues that will be considered on that day. One can observe this process on cable television and see the reporting of the results through the traditional news media. What is not so obvious is the power and influence of other people who participate in the policymaking while sitting in the stands.
  • 22. THREE ACTORS 1. Special Interest Groups These groups generally represent a specific interest, business, or point of view. They are represented by sophisticated lobbyists who are armed with weapons as well. The lobbyist provides expert information that can be used to persuade policymakers to agree with their point of view. That information is also used to educate and inform the public of their point of view. Lobbyists also have enormous power because they have money to buy policymakers lunch, to entertain, to persuade, and to influence campaigns.
  • 23. 2. State Government Departments Each department has a “legislative liaison” whose job it is to follow the process and educate the policymakers and the public. The departmental legislative liaison’s powerful tool is expert information, which is supposed to be neutral, not self-serving, and in the best interest of the entire community.
  • 24. 3. Consumers, Citizens, and Taxpayers Some groups are organized and sophisticated, like Common Cause, the National Rifle Association, and the senior citizen network, AARP. All kinds of citizens groups organize to follow, observe, and participate in the policymaking process. The power of this warrior group is seen in their ability to generate large numbers of people who are informed, get actively involved in the policy process, and vote regularly.
  • 25. Policy Into Law When all three groups agree—the special interest groups, the department liaison, and the consumer groups—their power coalesces around the policy, and it becomes law. It is good politics and generally good policy if all three of these groups are in agreement. Unfortunately, these groups don’t always agree nor get along with each other; they are often at odds.
  • 26. An effective policymaker will work to get at least two of the three groups to support the evolving consensus or compromise policy. The politics are to at least get the special interests and the consumers on the same page. The departments and the expert “neutral” information they represent do not carry the same weight as the well-financed lobbyists representing the special interest and the powerful influence of organized consumers who vote. Power is the bottom line!
  • 27. The most important point that can be made is that the democratic process is a participatory process; it works best when all of the interests are involved and engaged and part of the process. If consumers and taxpayers get discouraged—give up and walk away from the policymaking process—power goes by default to the special interests. Thomas Jefferson once said that “The best cure for an ailing democracy is more democracy.” Democracy is best served by getting people involved, organized, and focused.
  • 28. How then do citizens and community leaders at the grassroots level organize most effectively to influence the multi-faceted policy and political system described?
  • 29. Two Popular Myths (Dispelling Myths) You need large numbers to be effective: False. Most groups revolve around a small core of individuals who have the trust of the larger group. The core group must learn how to build coalitions and be able to draw on larger numbers at the appropriate time. Don’t be discouraged if only a small group shows up to key meetings. The important thing is not to exclude anyone from the core group and to learn when and how to involve the less committed allies. For those people who miss meetings, keep them involved and up-to-date with phone calls and mailings. The smallness of a group becomes a liability only if it remains small and/or is unable to develop coalitions.
  • 30. You must have special training to be able to organize a group: False. Some of the most savvy and effective organizers are grassroots people who know the wishes of the community and can articulate them. The key to leadership is gaining and keeping the trust of the group. This is accomplished by working with the group—not for them.
  • 31. The Bottom Line: Your Credibility To organize, you must identify and bring together a core group of individuals. The core group has basically two initial tasks: 1. To clearly develop a focus or set of goals 2. To decide how to expand the group to represent as many viewpoints as possible so that the group’s legitimacy and credibility cannot be challenged. The makeup of your group will, of course, help shape your goals; a group’s membership and its goals usually shift somewhat over time.
  • 32. Assumptions Before the group can develop a focus or a set of goals, it is important to state the assumptions the group might share. First, when dealing with institutions (e.g., government agencies), it is helpful to keep in mind the Peter Principle (Lawrence J. Peter. The Peter Principle. W. Morrow Publishers, 1969): Large, organizations develop bureaucratic hierarchies or “pyramids of power.” People are often promoted to positions of power beyond their level of competence. In other words, just because they have impressive- sounding titles, don’t assume they know what they are talking about! Second, our society is organized into institutions that were initially set up to achieve some special social goals.
  • 33. Legitimacy and Those Who Have It Are the Keys to Change Once you have effectively exposed the institution for its inability to achieve its own stated goals, the institution has basically two alternatives: 1. To make changes to achieve the goal 2. To become defensive and attack your group.
  • 34. Most institutions will initially resist change, especially if it is initiated from within. If they do begin to change, be on guard. Your group could be co-opted or sandbagged when a policymaker gives superficial lip service to your suggestion but has no intention of implementing policy or change. Your group, thinking they have won, will become diffused and apathetic— losing interest even though the critical work of implementing the change will require continued oversight and pressure. Quick success is almost always fatal to a community group!
  • 35. If the institution reacts defensively and begins to attack your group, it means you have hit a sensitive point and are on the right track. You can be sure you have become a threat when the institution begins to challenge your group’s credibility. You must expect this kind of attack and not become defensive. You can judge the merit of your recommended change by the intensity of the institutional attack. The more defensive and hostile their response to you and your group, the more on target you are. You should move ahead aggressively.
  • 36. Two Kinds of Commitment It is always important to remember that there are two levels of involvement and commitment to any movement for change. On one level is the emotional commitment—the feeling that something is wrong and the desire to do something to change it. There is also the intellectual level personified by a well-read, knowledgeable, thoughtful individual. A group needs both levels of commitment to be effective.
  • 37. 1. Those with the emotional commitment are the traditional activists. They are highly motivated and are anxious “to get involved” to try to change conditions. They normally have little historical perspective and are unable to articulate the group goals. They are often, but not always, hot heads and can be an embarrassment to your group. They are important to your group, but must learn to subordinate their own interests to those of the larger group.
  • 38. 2. The intellectual level requires individuals who understand the historical significance of the change being advocated. These people have a sophisticated understanding of the interrelationships, the nuances and the subtleties of the situation. Unfortunately, many intellectuals are unable to translate the thought into action and, therefore, are not helpful to a group. The ideal group leader has both an emotional and intellectual commitment (e.g., Martin Luther King, Jr., and Caesar Chavez) and can harness the energy of the emotions and the thoughtfulness of the intellect to give direction to a group
  • 39. Unfortunately, few groups have such unique individuals as leaders. It is, therefore, the leader’s task to be sure that both the emotional and intellectual commitment is present in the group. An over-reliance on either will lead to a poorly thought out strategy and subsequent clumsy attempts at change or what may be called “paralysis by analysis”—all thought and no action. Either result can be disastrous and counter productive because it makes future attempts to organize much more difficult.
  • 40. Forms of Power Now that you have identified a core group, goals and others who share your interest, it is time to consider what kinds of power you and your group can bring to the coming struggle. It is important to recognize that when you advocate change, you take on special interests that will be threatened by a change. Usually the special interest groups have a great deal of influence, often by default, because they possess an abundance of a few types of power: money, knowledge and personal relationships with the policymakers.
  • 41. Special interest groups are not necessarily sinister in their use of power. They use money to contribute to policymaker campaigns, to hire lobbyists, to wine-and- dine and to develop detailed materials to document their particular need(s). Special interests can and do play an important role in policymaking. Community groups can learn a great deal from observing how they utilize power to affect public policy. Community groups do not have the money to compete with special interests; therefore, they must seek to use other kinds of power. A core group of organizers must learn to mobilize other types of power.
  • 42. 1. Numbers Are Power Policymakers (e.g., city council members, legislators) are very concerned about large numbers of voters, especially if they are upset. It is important that you identify other groups that agree with your goals and who are willing to show up to a meeting on behalf of your interests. Numbers give you additional legitimacy and credibility. Policymakers continually assess the impact of what they are doing or plan to do. They are extremely sensitive to organized groups. The larger and more diverse the group, the more likely that it will be taken seriously. Seek ways to expand your group. The group, however, must have well-established goals and strategies, or it will become divided and ineffective.
  • 43. 2. Coalitions Are Power Although your group might be small, you probably can find others who share your concerns. Expanding the numbers of a group involves building coalitions; coalitions involve bringing together diverse groups to work toward a common goal. It is important to identify the goals because there will be area where the various coalition members disagree. The group must learn to agree on the goals and agree to disagree on the areas of difference.
  • 44. 3. Unity Is Power A large, diverse group presenting a unified position before a city council or a legislative committee has power. Be careful. Choose wisely the person who speaks for your coalition in public meetings. If the spokesperson gets excited, exaggerates a point or gives misinformation, a smart policymaker will seize upon the occasion to destroy the credibility of all of the information and may discredit the entire group as well. Should the group seek to defend the misstatement, it risks its own credibility. However, if the group disassociates itself from the spokesperson or information presented the group may become divided and ineffective. Do not let this happen! Unity is essential to maintain your legitimacy and credibility. Disunity equals powerlessness.
  • 45. 4. Positions Are Power It is important to bring to your group people who hold important, credible positions in your community. Bankers, educators, business people, community leaders and clergy give your group legitimacy. Try to involve them in your group.
  • 46. 5. Knowledge Is Power Two kinds of knowledge are essential to affect public policy: First, you must be knowledgeable about the process of decision-making. Each public body has rules and policies that describe how decisions are made. Get the rules. Learn them. Remember there are also informal rules. Get to know those, too. Then monitor the meetings and impact the decisions at the appropriate time. Second, you must be knowledgeable about the issue you represent. Study and understand the issue. Do not exaggerate or misrepresent the facts. Develop good information. Policymakers will learn to trust you and eventually will depend on you for facts.
  • 47. 6. Relationships Are Power It is always helpful to know the legislator, city councilperson, or county commissioner personally. Don’t be afraid to help on a campaign or volunteer to work in a policymaker’s office. Development of a personal relationship with the policymaker will give you access and credibility. You should get to know key policymakers to such a degree that you feel comfortable calling them or visiting their offices. You will know that you have power and influence with policymakers when they return your phone calls. It is also helpful to know that each policymaker has a hidden advisor—some trusted friend or associate who meets regularly with the policymaker and has an inordinate amount of influence on the policymaker’s thinking and judgment. You can save yourself and your group a lot of trouble if you get to know that hidden advisor, working to gain this person’s trust.
  • 48. 7. Voting Is Power Elected policymakers listen to voters. Be sure you are registered and vote. Be sure that all of your coalition members are voters and willing to vote as a block. 8. Use of the Media Is Power Policymakers dislike bad publicity. You must learn how to develop literature, talk to the press, go on radio, and speak before cameras so you can get your message across. Policymakers will go out of their way to avoid bad press if they can, so don’t be afraid to use the media.
  • 49. 9. Money Is Power Although most citizens’ groups are at a monetary disadvantage, they must have some funds to develop materials, pay for mailings and keep other members of the coalition informed. You will not be able to compete financially with special interests, but if you have the other elements of power, you can overcome the power of money. No group, however, can function without some funds!
  • 50. 10. The Internet Is New Power In the 20 years since I originally developed this organizing “recipe,” a new ingredient has appeared that is showing remarkable ability to inform and influence policy and policymakers—The World Wide Web. It is a tool that puts information and organizing ability in the hands of real people who would be wise to make sure the other ingredients are on the table when cooking up their plans for social change. The Internet is changing our concept of “community” and extending our reach in ways that were unimaginable, or certainly much more difficult to achieve, before its advent. New strategies and lessons learned will come from a new generation of organizers for whom this tool has become a vital channel for change.
  • 51. These ten elements of power, if used in combination, will more than offset the special interest groups. No smart public officials will disregard the wishes of a large, unified coalition of knowledgeable voters who have expressed a specific interest to them. The power of money usually will dwindle as the organized community group becomes more knowledgeable, assertive and effective.
  • 52. The Four Key Ingredients Once your group is formed—a process that might take weeks or months—four elements must be present before the group can take any action. If one of the four is missing, the group will exhibit the classic defense mechanisms—rationalizing, back stabbing, scapegoating, forming more committee(s)—to avoid taking action. The four essential ingredients are: Hope: The group must believe that all the effort, time, and toil will result in some changes. Courage: The group must be willing to “risk” the confrontation. Goals: The group must clearly understand what it is that is being changed. Strategy: The group must clearly understand how the goal is to be achieved.
  • 53. Making It Happen Once the group has become a group, has identified its goals, and has decided to take an action, follow these six simple rules to achieve maximum results: 1. Be There “Being there” means finding out when and where the real decisions are made and then getting the appropriate people to that meeting. This might mean having one person monitor a meeting for several weeks just to know what is going on and then, at the appropriate time, bringing in the larger group. “Being there” means making a commitment to understanding the system. Nothing is more frustrating than being at the right place at the wrong time or at the wrong place and missing the real decision.
  • 54. 2. Be Informed It is important that the group be legitimate. This means developing accurate information and presenting it in the most rational way. Even the slightest exaggeration or smallest piece of misinformation can discredit the group and destroy its legitimacy. When developing specific information for policymakers, assume that they are intelligent but uniformed. Remember, they have more than one issue to be concerned about. It is a mistake to assume they know or care about yours. Be prepared to be challenged on your data. Make sure it is accurate. Develop a network for information-gathering that is quick and responsive. Once you have established your credibility, you will be called upon again and again.
  • 55. 3. Be Able to Count This is a democratic society—the majority rules. The group must know the number needed to pass a resolution, law ordinance or policy. They must know policymakers’ stands on issues that concern them and develop arguments that will appeal to the voters. (This might entail compromise, which every group should consider as part of their strategy.) Remember, policymakers can also count. It is therefore important to demonstrate that your group is legitimate—well- informed and broadly based. At some point in the process, you may need to produce large numbers of allies to demonstrate your broad base of support, and to do this you must build coalitions.
  • 56. 4. Don’t Be Intimidated Intentionally or not, the system is intimidating. To personally visit a key policymaker, you may have to go through two assistants and three doors—and then confront a huge, overpowering, walnut desk that separates you from the policymaker. During official meetings, the policymakers sit together, usually on a raised platform, surrounding themselves with “experts” from the bureaucracy. If you wish to address the group, you must “come down front” and stand before them—alone—speaking into a microphone that distorts your voice, increasing your discomfort. Don’t be intimidated by all of this. If you are informed, if you have the votes, and if your support group shows up, you will find that your fears soon disappear.
  • 57. 5. Don’t Take “No” For An Answer You should never expect a new idea, no matter how logical or reasonable, to be accepted on its face value the first time it is presented. Instead, you should anticipate all of the hostile questions and expect to be turned down initially. In fact, if your idea is accepted up front, without much resistance, there probably will be no real change. It may mean that the policymakers are going to sandbag your proposal—by giving lip service to your idea with no intention of implementing it. In general, the more the resistance, the better the idea. Be prepared to dig in and follow through because it takes a major commitment of time and energy to fully implement a new policy.
  • 58. 6. Follow Through All of the group’s efforts can be lost if you fail to follow through. In fact, you can be co-opted by an easy victory since the group will tend to dissolve after reaching its goal. Within weeks or months, things will be back to normal and you’ll find it difficult, if not impossible, to get the group back together.
  • 59. Conclusion Community change means a commitment to the long haul—to the process. Don’t be confused with winning and losing. Many times, winning in the short term really means losing in the long run. Conversely, losing is often best for the group. After a period of time, a group leader will learn that it is the process of continually participating in change and the integrity of the people who participate in that process that is most important, not winning or losing a few skirmishes.
  • 60. Finally, never lose your humanity in order to save humanity. One of the most important assets of a change agent is a sense of humor. Learn to laugh at yourself and with others. Strive to make this world a better place to live, work, and love. In doing so, remember that no single issue—no matter how important it may seem today—is as important as your commitment to each other and your commitment to the integrity of the process.
  • 61. THANK YOU      